We study offline reinforcement learning under $Q^\star$-approximation and partial coverage, a setting that motivates practical algorithms such as Conservative $Q$-Learning (CQL; Kumar et al., 2020) but has received limited theoretical attention. Our work is inspired by the following open question: "Are $Q^\star$-realizability and Bellman completeness sufficient for sample-efficient offline RL under partial coverage?" We answer in the negative by establishing an information-theoretic lower bound. Going substantially beyond this, we introduce a general framework that characterizes the intrinsic complexity of a given $Q^\star$ function class, inspired by model-free decision-estimation coefficients (DEC) for online RL (Foster et al., 2023b; Liu et al., 2025b). This complexity recovers and improves the quantities underlying the guarantees of Chen and Jiang (2022) and Uehara et al. (2023), and extends to broader settings. Our decision-estimation decomposition can be combined with a wide range of $Q^\star$ estimation procedures, modularizing and generalizing existing approaches. Beyond the general framework, we make further contributions: By developing a novel second-order performance difference lemma, we obtain the first $ε^{-2}$ sample complexity under partial coverage for soft $Q$-learning, improving the $ε^{-4}$ bound of Uehara et al. (2023). We remove Chen and Jiang's (2022) need for additional online interaction when the value gap of $Q^\star$ is unknown. We also give the first characterization of offline learnability for general low-Bellman-rank MDPs without Bellman completeness (Jiang et al., 2017; Du et al., 2021; Jin et al., 2021), a canonical setting in online RL that remains unexplored in offline RL except for special cases. Finally, we provide the first analysis for CQL under $Q^\star$-realizability and Bellman completeness beyond the tabular case.

We tackle this by introducing two novel value-based algorithms.

This paper studies offline Imitation Learning (IL) where an agent learns to imitate an expert demonstrator without additional online environment interactions. Instead, the learner is presented with a static offline dataset of state-action-next state triples from a potentially less proficient behavior policy. We introduce Model-based IL from Offline data (MILO): an algorithmic framework that utilizes the static dataset to solve the offline IL problem efficiently both in theory and in practice. In theory, even if the behavior policy is highly sub-optimal compared to the expert, we show that as long as the data from the behavior policy provides sufficient coverage on the expert state-action traces (and with no necessity for a global coverage over the entire state-action space), MILO can provably combat the covariate shift issue in IL. Complementing our theory results, we also demonstrate that a practical implementation of our approach mitigates covariate shift on benchmark MuJoCo continuous control tasks. We demonstrate that with behavior policies whose performances are less than half of that of the expert, MILO still successfully imitates with an extremely low number of expert state-action pairs while traditional offline IL methods such as behavior cloning (BC) fail completely. Source code is provided at https://github.com/jdchang1/milo.

This paper studies offline Imitation Learning (IL) where an agent learns to imitate an expert demonstrator without additional online environment interactions. Instead, the learner is presented with a static offline dataset of state-action-next state triples from a potentially less proficient behavior policy. We introduce Model-based IL from Offline data (MILO): an algorithmic framework that utilizes the static dataset to solve the offline IL problem efficiently both in theory and in practice. In theory, even if the behavior policy is highly sub-optimal compared to the expert, we show that as long as the data from the behavior policy provides sufficient coverage on the expert state-action traces (and with no necessity for a global coverage over the entire state-action space), MILO can provably combat the covariate shift issue in IL. Complementing our theory results, we also demonstrate that a practical implementation of our approach mitigates covariate shift on benchmark MuJoCo continuous control tasks.

In offline reinforcement learning (RL) we have no opportunity to explore so we must make assumptions that the data is sufficient to guide picking a good policy, taking the form of assuming some coverage, realizability, Bellman completeness, and/or hard margin (gap). In this work we propose value-based algorithms for offline RL with PAC guarantees under just partial coverage, specifically, coverage of just a single comparator policy, and realizability of soft (entropy-regularized) Q-function of the single policy and a related function defined as a saddle point of certain minimax optimization problem. This offers refined and generally more lax conditions for offline RL. We further show an analogous result for vanilla Q-functions under a soft margin condition. To attain these guarantees, we leverage novel minimax learning algorithms to accurately estimate soft or vanilla Q-functions with $L^2$-convergence guarantees. Our algorithms' loss functions arise from casting the estimation problems as nonlinear convex optimization problems and Lagrangifying.

We study model-based offline Reinforcement Learning with general function approximation. We present an algorithm named Constrained Pessimistic Policy Optimization (CPPO) which leverages a general function class and uses a constraint to encode pessimism. Under the assumption that the ground truth model belongs to our function class, CPPO can learn with the offline data only providing partial coverage, i.e., it can learn a policy that completes against any policy that is covered by the offline data, in polynomial sample complexity with respect to the statistical complexity of the function class. We then demonstrate that this algorithmic framework can be applied to many specialized Markov Decision Processes where the additional structural assumptions can further refine the concept of partial coverage. One notable example is low-rank MDP with representation learning where the partial coverage is defined using the concept of relative condition number measured by the underlying unknown ground truth feature representation. Finally, we introduce and study the Bayesian setting in offline RL. The key benefit of Bayesian offline RL is that algorithmically, we do not need to explicitly construct pessimism or reward penalty which could be hard beyond models with linear structures. We present a posterior sampling-based incremental policy optimization algorithm (PS-PO) which proceeds by iteratively sampling a model from the posterior distribution and performing one-step incremental policy optimization inside the sampled model. Theoretically, in expectation with respect to the prior distribution, PS-PO can learn a near optimal policy under partial coverage with polynomial sample complexity.